Personally, I interpret things such that his campaign has improved Gotham, and noticeably so -- but that it's also led to the rise of more unstable elements like the Joker, Two-Face, etc.
Which is pretty much the premise of The Dark Knight
. Batman defeats regular crime, but that creates a void that the supercriminal rises to fill. They even set this up at the end of Batman Begins
when they spoke of escalation.